Assessment of the National Action Plan (NAP) on Business and Human Rights of ITALY

Transcription

1 Assessment of the National Action Plan (NAP) on Business and Human Rights of ITALY August 2017

2 In December 2016, the Italian government launched a National Action Plan (NAP) on business and human rights. In response, the International Corporate Accountability Roundtable (ICAR) and the European Coalition for Corporate Justice (ECCJ) conducted a structured assessment of the Italian NAP, using the NAPs Checklist developed and published by ICAR and the Danish Institute for Human Rights (DIHR). i The NAPs Checklist lays out a set of twenty-five criteria that address both the content of NAPs and the process for developing them. This assessment is part of a larger effort by ICAR to assess all existing NAPs on business and human rights. In November 2014, ICAR and ECCJ published its first version of a joint report Assessments of Existing National Action Plans (NAPs) on Business and Human Rights, ii which systematically assessed the published NAPs from the United Kingdom, the Netherlands, Denmark, and Finland. In November 2015, ICAR and ECCJ published an update of this report including the assessments of the Lithuanian and Swedish NAPs. This report was updated a further time in August 2017, in conjunction with both ECCJ and Dejusticia, to include assessments of the Colombian, Norwegian, United States, United Kingdom (second iteration), Italian, and Swiss NAPs.

3 ASSESSMENT SUMMARY: ITALIAN NATIONAL ACTION PLAN Introduction The Italian government expressed its intention to draft a National Action Plan (NAP) on business a d hu a ights i. Ital s I te -ministerial Committee for Human Rights (CIDU) at the Ministry of Foreign Affairs and International Cooperation coordinated the drafting of the NAP. In De e e, the Italia go e e t eleased The Fou datio s of the Italia A tio Pla o the U ited Natio s Guidi g P i iples o Busi ess a d Hu a ights, ( Foundations paper ) which was based on an analysis of the gaps in domestic implementation of the UN Guiding Principles on Business and Human Rights (UNGPs) and served as an outline for the development of the NAP. The Italian NAP is organized exclusively around Pillar I, the State duty to protect, and Pillar III, access to remedy of the UNGPs, and goes through their respective UNGPs principle by principle. Rather than addressing Pillar II specifically, the NAP broadly discusses the corporate espo si ilit to espe t u de the Go e e t E pe tatio s To a d Busi ess se tio. This is in part because the Italian government views business and human rights and corporate social responsibility as two separate policy areas, and maintains a separate national action plan on corporate social responsibility (CSR). This summary outlines key trends in terms of process and content, as identified through the attached assessment of the Italian NAP. It is hoped that other States that are considering or are in the process of creating a NAP will use this assessment to inform their own processes. Process The positive aspects of the NAP drafting process include: (1) the government entity tasked with overseeing the drafting of the NAP was clearly identified; (2) the government commissioned a gap analysis, or national baseline assessment (NBA), prior to drafting the NAP; (3) an intergovernmental working group was created to inform the NAP drafting; and (4) a draft of the NAP was published and consulted upon before the final version was adopted. From the beginning of the NAP process, it was clear that CIDU was the lead agency responsible for the coordination of the NAP process. Additionally, prior to the drafting of the NAP, the go e e t o issio ed a ade i s f o the U i e sit of a t A a to o du t a NBA, which e a i ed the ade ua of the Italia egulato a d i stitutio al f a e o ks i o pa iso to 1

4 the [UNGPs], ide tified st e gths a d eak esses, a d ela o ated spe ifi e o e datio s on how to ensure stronger conformity with the UNGPs. 3 The creation of the NBA and subsequent Foundations paper allowed the Italian government to develop a more informed and evidence-based NAP. Another strong aspect of the NAP process was the establishment and coordination of an ad hoc working group composed of representatives from several ministries and institutions to participate in the NAP process. By helping to facilitate broad governmental engagement, the NAPs process can serve to build government buy-in and increase the likelihood of efficacious implementation. Similarly, the draft NAP was published and open for public comment from July 27 to September 10, However, the NAP process could have been improved in a number of ways. First, the entire NAP process could have benefitted from increased transparency; the Italian government did not publish a budget, terms of reference, or timeline for the NAP process. Additionally, while the process included a number of stakeholder consultations, these efforts could have been strengthened through the facilitation and inclusion of disempowered or at-risk stakeholders. In relation to monitoring and follow-up to the NAP, the government commits to establish an inter-departmental group, known as the Working Group on Business and Human Rights to work jointly with a consultative body composed of relevant non-governmental stakeholders, such as businesses, trade unions, civil society organizations, human rights defenders, and academics, to monitor the implementation of the NAP. Although the NAP layouts out a framework for monitoring and reporting which includes at-risk stakeholders, it does not go as far as to clarify a framework for reporting on implementation or commit to update the NAP in the future. Content The o te t of the NAP fo uses o the Italia go e e t s o it e ts u de Pillars I and III. The NAP only broadly discusses Pillar II, the corporate responsibility to respect, in terms of expectations, rather than action points. O e positi e aspe t of the Italia NAP is that it add esses the full s ope of the tate s ju isdi tio by focusing on promoting corporate responsibility and protecting human rights both domestically and abroad. The NAP also does a good job of prioritizing the most serious businessrelated human rights abuses based on the results of its NBA, including: promoting due diligence, decreasing exploitation of vulnerable groups by businesses, promoting fundamental labor rights, st e gthe i g Ital s i te atio al de elop e t oope atio, ta kli g dis i i atio a d 2

5 inequality, and promoting environmental protection. The NAP also gives special focus on vulnerable and excluded groups. One negative aspect of the NAP is that none of the planned measures contained in the NAP have specific timelines for implementation, nor do they specify which government agency or department is tasked with implementing and following-up on future actions. Additionally, as mentioned above, many of the measures included only vague commitments. The lack of spe ifi it a d st u tu e of the pla ed easu es ill ake t a ki g the NAP s i ple e tatio difficult. The planned measures could have been improved through more specificity in the nature of the commitments made and the process by which implementation will be achieved. 3

6 1.GOVERNANCE AND RESOURCES Leadership and Ownership of NAP Process ICAR-ECCJ ASSESSMENT OF THE ITALIAN NATIONAL ACTION PLAN ON BUSINESS AND HUMAN RIGHTS The Italian government expressed its intention to draft a NAP on business and human rights in In December 2013, the Italian government eleased The Foundations of the Italian Action Plan on the United National Guiding Principles o Busi ess a d Hu a ights, hi h laid the g ou d o k fo the adoptio of the Italian NAP. 5 This document was based on a gap analysis commissioned by the OECD National Contact Point (established within the Italian Ministry of E o o i De elop e t a d o du ted U i e sit of a t A a i. 6 The creation of both of these documents is a positive indication of the go e e t s o it e t to a o p ehe si e NAP process Commitment to the NAP process. In the NAP, the government acknowledges that the NAP is an instrument to o e to a ds the e eeds of i te a tio et ee hu a ights a d the e o o i di e sio i li e ith the UN Guidi g P i iples o Busi ess a d Human Rights (UNGPs). 7 It affi s Ital s p o otio a d espe t fo hu a rights - ith pa ti ula o side atio to the ost ul e a le g oups as p i a vehicles to rebalance the distortions and inefficiencies produced within the economic and productive contexts that have proved not to be efficient in this ega d. 8 I its state e t of o it e t, the NAP otes that Ital is o itted to promote and carry out key-actions to provide that, within the domestic 4

7 legislative, institutional and operational framework regulating economic activities, human rights are conceived as a priority so that the eventual adverse i pa t of usi ess o these ights is p ope l add essed. 9 It further states that this o it e t ill efle t also i Ital s e te al a tio, e ou agi g a d favoring the adoption of adequate measures to foster respect of human rights i usi ess a ti ities at egio al a d i te atio al le el. 10 While the creation of an inter-departmental group to guide the NAP process (to be discussed in section 1.2 of this assessment) is another positive indication of the go e e t s o it e t to the NAP p o ess, the ague o ito i g a d implementation commitments and lack of reporting requirements demonstrate a weakness in the overall commitment to the NAP process. Failure to implement more specific action points with timelines and reporting requirements will e essa il i pa t the pla s effe ti e ess Ensure responsibility for the NAP process is clearly established and communicated. Ital s I te -ministerial Committee for Human Rights (known by Italian acronym, CIDU) at the Ministry of Foreign Affairs and International Cooperation coordinated the drafting of the NAP Ensure an inclusive approach across all areas of government. As noted above, the Ministry of Foreign Affairs and International Cooperation was the lead agency on the creation of the NAP. An ad hoc working group composed of representatives of several ministries and institutions, including the Ministry of Economic Development, Ministry of the Infrastructures and Transports; Ministry of Justice; Interior Ministry; Ministry of Labour and Social Policies, Ministry for the Environment, Land and Sea, National Institute of 5

8 Statistics, was also established and coordinated by CIDU Devise and publish terms of reference and a timeline for the NAP process. Adequate Resourcing In addition, an inter-departmental group, known as the Working Group on Business and Human Rights (in Italian: GLIDU), is charged with ensuring implementation of the NAP, working jointly with a consultative body composed of all relevant non-institutional stakeholders (business community, trade unions, NGOs, civil society organizations, human rights defenders, individual experts and representatives from academia). 13 Neither terms of reference nor a timeline for the NAP process was published. The go e e t pu lished the Fou datio s of the Italia A tio Pla o UN Guidi g P i iples o Busi ess a d Hu a ights UNGPs as a fou datio al document on which it based the NAP; however, this document did not contain a clear timeline for the process Determine an appropriate budget for the NAP process. There is no information publicly available on the level of funding provided for the NAP process. 6

9 2.STAKEHOLDER PARTICIPATION Effective Participation by All Relevant Stakeholders 2.1. Conduct and publish a stakeholder mapping. No information on any stakeholder mapping was published Develop and publish a clear plan and timeline for stakeholder participation. The Italian government did not provide a clear plan or timeline for stakeholder participation in the NAP process. Pre-draft consultations were limited in the development of the NAP. 15 The Italian inter-departmental working group invited only the UN Global Compact Network to participate in a few of its meetings. 16 Italy circulated the first full draft NAP to a select list of stakeholders: ActionAid, Amnesty International Italy, Mani Tese, Re:Common and a few other civil society organizations. 17 The government then released an updated draft NAP online for public consultation from July 27 to September 10, Provide adequate information and capacitybuilding where needed. The Italian government did not provide capacity-building measures in its engagement with stakeholders Facilitate participation by disempowered or at-risk stakeholders. The Italian government did not thoroughly facilitate participation by disempowered or at-risk stakeholders. While it did publish a draft of the NAP online for public consultation, 19 it is unclear if this reached disempowered/atrisk stakeholders. There is no evidence to suggest that specific efforts were made to seek testimony from rights holders or facilitate opportunities for affected individuals to participate in consultations. 7

10 A o di g to the Italia go e e t, du i g the NAP d afti g p o ess, ad ho working groups [were] created to involve in this exercise also non-institutional actors and the business world working in Italy and abroad promoting the full a a e ess a d i ple e tatio of the UNGPs Consider establishing a stakeholder steering group or advisory committee. In addition, the NAP announces the creation of the Working Group on Business and Human Rights (GLIDU, in Italian), an inter-departmental steering committee oo di ated CIDU. The GLIDU ill o k joi tl with a consultative body composed of all relevant non-institutional stakeholders (business community, trade unions, NGOs, civil society organizations, human rights defenders, i di idual e pe ts a d ep ese tati es f o a ade ia i supe isi g the implementation of the NAP. 21 The GLIDU was supposed to be established in March 2017; however, no public information about this occurrence has been released 22. 8

11 3.NATIONAL BASELINE ASSESSMENT (NBA) The NBA as the Foundation for the NAP 3.1. Undertake a NBA as the first step in the NAP process. In early 2013, the OECD National Contact Point at the Italian Ministry of Economic Development commissioned academics from the University of a t A a to o du t a NBA. 23 The lau hed the epo t Busi ess a d Hu a ights: The Italia ase i Italia o ly) in November The report e a i ed the ade ua of the Italia egulato a d i stitutio al f a e o k i o pa iso to the Guidi g P i iples, ide tified st e gths a d eak esses, a d elaborated specific recommendations on how to ensure stronger conformity with the UNGPs. 25 It also sought to p o ide lea guida e to those o pa ies willing to meet the new international standards within the existing normative f a e o k. 26 The a al sis is ased ai l o desk-based research and a limited number of interviews, mainly with State administration and national civil so iet, ithout a s ste ati out ea h to pote tial i ti s. 27 I additio, i De e e, the Italia go e e t eleased The Foundations of the Italian Action Plan on the United National Guiding Principles o Busi ess a d Hu a ights The Fou datio s pape ased p i a il o the gap analysis. 28 The Foundations paper focuses exclusively on the first and third Pilla s of the UNGPs, i.e., the state s dut to p ote t a d a ess to emedy issues Allocate the task of developing the NBA to an appropriate body. The gap analysis was carried out under the supervision of Professor Andrea de 9

12 3.NATIONAL BASELINE ASSESSMENT (NBA) Guttry, by a group of researchers at the University of Sant'Anna, comprising Claudia Cinelli, Damiano de Felice, and Chiara Macchi Fully involve stakeholders in the development of the NBA. The gap a al sis as ased i pa t o di e t e a i atio of poli ies a d legal instruments, analysis of specific government grants, the study of comments and annotations in specialist publications and conducting interviews with experts in the a ious dis ipli es add essed [t a slated f o o igi al Italia ]. 31 The extent to which stakeholders were involved in the analysis is unknown; according to so e o sultatio s e e li ited to a fe do esti stakeholde s Publish and disseminate the NBA. The gap analysis was published online on November 4, 2013, in Italian only

13 4.SCOPE, CONTENT, AND PRIORITIES Scope of NAPs 4.1. A NAP should address the full scope of the UNGPs. The Italian NAP is organized almost exclusively around Pillars I and III of the UNGPs, and goes through their respective UNGPs principle by principle. The NAP begins with an introduction of the UNGPs and a brief description of the three Pillars. The substantive content of the NAP is divided into narrative lists of government commitments under UNGPs 1-2 and 28-31, and into 59 more spe ifi Pla ed Measu es, hi h a e o ga ized u de UNGPs -10 and Despite the less comprehensive focus on Pillar II, the NAP does state with ega d to the espo si ilit to espe t, that e te p ises ha e to o du t processes aimed at preventing the risk of causing (or contributing to) adverse human rights impact and at adopting specific measures able to mitigate e e tual ha ful o se ue es. 34 The NAP then elaborates on specific expectations for companies such as creating and implementing due diligence processes and providing grievance mechanisms for victims of abuse. 35 In general, the Italian NAP is a summary of ongoing processes and existing objectives, framed by often vague commitments many of which will be difficult to monitor in the absence of a timeline and clearly allocated responsibilities. In terms of substantive content, the following four sub-criteria provide insight i to the NAP s o e age of the full s ope of the UNGPs ithout o du ti g a e te si e a al sis of the NAP s fulfill e t of ea h UNGP. These fou su -criteria are: (1) positive or negative incentives for business to conduct due diligence, (2) 11

14 4.SCOPE, CONTENT, AND PRIORITIES disclosure of due diligence activities, (3) measures which require due diligence as the basis for compliance with a legal rule, and (4) a regulatory mix (i.e. a combination of voluntary and mandatory measures that the State uses to encourage business to respect human rights). 36 These sub-criteria are not an exhaustive list, but have been supported by other researchers and advocacy g oups as i di ati e of a NAP s ade ua i te s of su sta ti e o te t. (1) Positive and Negative Incentives for Due Diligence O e of the Italia go e e t s si p io ities fo the NAP is promoting human rights due diligence processes, aimed at identify [sic], prevent and mitigate the pote tial isks ith pa ti ula fo us o MEs. 37 In consideration of this focus, the NAP establishes a number of commitments to promote due diligence, both generally and at the company level. Generally, the NAP commits the government to promoting the concept of due diligence and its general development as an international standard. For e a ple, u de UNGP, d the go e e t o its to pa ti ipate to [si ] initiatives in the context of the OECD, EU and other international fora on sustai a le suppl hai s, hu a ights a d due dilige e. 38 Similarly, under UNGPs 9-, the go e e t ill p o ote fu the a d ide e ou se to due diligence processes and foster exchanges of experiences with partner countries at EU and global level, and with international organizations such as the OECD, ILO, IOM, and UNICEF

15 4.SCOPE, CONTENT, AND PRIORITIES Other planned measures aim to promote the use of due diligence at the company level. For example, under UNGP 3(c,d), one planned measure is to p o ote [a] o o u de sta di g of due dilige e a o g o pa ies a d strongly encourage companies to engage in human rights policy and due dilige e p o esses i ol i g the e ti e suppl hai. 40 Similarly, under UNGP, the NAP o its the go e e t to fu the p o ote the k o ledge of the OECD due dilige e guida e a d to e ou age a d suppo t MEs i following this guidance. 41 However, it is unclear how the government will promote due diligence, and in what ways, if any, it will seek to provide positive or negative incentives. Another future commitment that could be seen to incentivize the use of due diligence is a planned measure under UNGPs 9 & 10, which states that the go e e t ill ad o ate fo a s ste of hu a ights edits i i te atio al t ade th ough the p oposal of i t odu tio of a spe ial dut fo goods imported from countries and/or produced by enterprises not complying ith hu a ights fu da e tal sta da ds. 42 By imposing a special duty on enterprises not complying with fundamental human rights, businesses will be incentivized to ensure compliance with human rights standards through conducting due diligence in order to avoid this monetary penalty. The NAP also lists current government policies that could establish certain i e ti es fo due dilige e p o esses. Fo e a ple, Ital s legalit ati g provides legally compliant companies with good governance initiatives a certification of compliance, which entitles them to access public funding and 13

16 4.SCOPE, CONTENT, AND PRIORITIES easier bank credit access. 43 As a othe e a ple, u de the Italia go e e t s recent initiatives to comply with UNGP 3(a), the NAP lists a 2014 Decree that esta lished ete del La o o Ag i olo di Qualità, a et o k ai ed at countering irregular work in agriculture. 44 Under this decree, companies compliant with specific requirements under labor, social security, and fiscal law may apply to join the network, and this is rewarded with special incentives (such as ei g i luded i a hite list hi h lets go e e t e fo e e t age ies prioritize their controls over companies who are not on the list). 45 Ideally, however, the NAP missed an opportunity to establish more specific ways in which positive and negative incentives for due diligence can be provided for. (2) Disclosure of Due Diligence Activities The NAP does not explicitly require or mandate disclosure of due diligence activities, but does commit to broadly promoting disclosure and reporting mechanisms. For example, under UNGP 3(a), the government commits to p o ote effe ti e i ple e tatio of EU Di e ti e / o dis losu e of non-financial and diversity information la ge e te p ises a d g oups. 46 Similarly, under UNGP 3(c, d), the government commits to promoting e i o e tal a ou ti g i sustai a ilit epo ti g a d e ou agi g the adoption of disclosure processes for the assessment and communication of the en i o e tal a d a o footp i t of usi ess. 47 The NAP also does not refer to any existing regulatory regimes that may 14

17 4.SCOPE, CONTENT, AND PRIORITIES mandate such disclosures, but refers to the need for them. For example, under the go e e t s e pe tatio s fo usi ess, the NAP states that it is i po ta t to add the need of disclosure of non-fi a ial i fo atio a d the e iste e of e a ka le sta da ds su h as the UNGP epo ti g F a e o k. 48 (3) Measures Requiring Due Diligence as the Basis for Compliance with a Legal Rule There are few planned measures within the NAP that could require due diligence as part of compliance with a legal rule. Under UNGP 3(b), the go e e t o its to o du t a o p ehe si e e ie of the e isti g commercial and civil law to assess and evaluate legislative reform introducing p o isio s su h as the dut of a e o due dilige e fo o pa ies. 49 Depending on the outcome of this review, the Italian government might decide it necessary to require mandatory due diligence. Additionally, under UNGPs 4-6, the Italia go e e t o its to ela o ati g ithi the CIDU the o ept of a hu a ights lause to e i luded as a requirement for competing enterprises in all public model tenders and agreements with business enterprises for the purchase of goods and p o isio of se i es. 50 However, the planned measure does not detail what the human rights clause would specify and if it would require due diligence. The NAP does mention existing legal rules and policies that would likely require due diligence. For example, Legislative Decree No. 231 of 2001 provides a form of liability (administrative in nature, but ascertained by a penal judge/according 15

18 4.SCOPE, CONTENT, AND PRIORITIES to criminal law procedures) for entities committing specific offences (ranging from financial crimes like corruption and fraud to trafficking and to even serious environmental crimes). 51 To avoid liability, entities must adopt sound models and a mechanism for monitoring/supervising compliance with that model, making the law both preventive and punitive. 52 (4) Regulatory Mix The regulatory mix of the commitments outlined in the NAP includes many positive planned measures which either promote due diligence and disclosure of due diligence, or could require due diligence as part of compliance with a legal rule. However, the regulatory mix is not fully satisfactory, because it neither describes how the government will provide incentives for due diligence, nor does it go as far to commit to requiring mandatory due diligence although it does lay the groundwork for possibly doing so in the future A NAP should address the full scope of the tate s ju isdi tio. The Italian NAP is focused on promoting corporate responsibility and protecting human rights both domestically and abroad. Therefore, the NAP generally add esses the full s ope of the tate s ju isdi tio, keepi g a oad fo us o both companies (Italian or foreign) acting within the country, and Italian companies acting in other jurisdictions. The NAP has a number of domestically-focused planned measures, specifically in relation to three of its six key priorities: tackling caporalato (illegal hiring); tackling discrimination and inequality and promoting equal opportunities; and 16

19 4.SCOPE, CONTENT, AND PRIORITIES promoting environmental protection and sustainability. 53 The NAP also includes several internationally-focused planned measures such as ela o ati g ithi the CIDU the o ept of a hu a ights lause to e i luded as a e ui e e t fo o peti g e te p ises ith pa ti ula fo us o i enterprises operating abroad; ii) enterprises availing themselves of foreign supplie s; [a d] iii fo eig e te p ises. 54 Other proposed measures include p o idi g guida e to Italia e te p ises a oad th ough the diplo ati a d o sula et o k fo the disse i atio of UNGPs a d the DGs a d disse i ati g espe t of the UNGPs to e te p ises i esti g a oad th ough a information toolkit for the diplo ati a d o sula et o k. 55 Furthermore, judicial reform/remedy priorities also focus on both domestic and international corporate actors. For example, the NAP proposes that Italian legislato s fo us o easu es to st e gthe spe ial ou ts fo enterprises by extending their competence to consumer protection-related claims, misleading ad e tisi g a d u fai o petitio a d the i t odu tio of i i al p o isio s agai st e o o i i es, also o itted a oad. 56 The NAP also focuses on analyzing and removing barriers to accessing remedy for victims of human rights a uses espe iall ith ega d to e t ate ito ial iolatio s A NAP should address international and regional organizations and standards. The Italian NAP extensively discusses international and regional organizations and standards and how the State and businesses should use those organizations and standards to push for greater respect for human rights in general, and 17

20 4.SCOPE, CONTENT, AND PRIORITIES further implementation of the UNGPs. The NAP explicitly mentions international organizations and standards in several measures. For example, in relation to Guiding Principles 3(c, d), the NAP provides eight planned measures specifically in relation to the OECD Guidelines for Multinational Enterprises. 58 It also discusses the OECD National Contact Point system. 59 Multiple other planned measures discuss promoting activities of the United Nations Global Compact, 60 ratifying/integrating ILO norms and protocols, 61 disseminating/promoting the Sustainable Development Goals, 62 and promoting a a e ess of the UNICEF Busi ess La i itiati e, 63 among other references to international organizations and standards A NAP should address thematic and sectorspecific human rights issues. The NAP does address thematic and sector-specific human rights issues in its planned future measures. It touches on issues such as trade, conflict areas, corruption, security concerns, responsible investment, and public procurement. It specifically prioritizes tackling illegal forms of labor and labor exploitation in the agricultural, construction, manufacturing, and services sectors. 64 There is also a heavy focus on the environment and measures that promote sustainability, specifically Agenda 2030 and the Sustainable Development Goals

21 4.SCOPE, CONTENT, AND PRIORITIES Content of NAPs 4.5. The NAP should include a statement of commitment to the UNGPs. The NAP states that Ital has u de take the d afti g of a Natio al Action Plan on business and human rights to ensure the integration and implementation of the UNGPs ithi atio al poli a d st ateg. 66 It also includes as the first se tio, a state e t of o it e t, he e it outli es the Italia governments commitme ts i elatio to e su i g the espe t of hu a ights ithi e o o i a ti ities. 67 In addition, the NAP is designed around the three pillars of the UNGPs and mentions the UNGPs specifically throughout the NAP. It lists its current activities and future commitments under the framework of each guiding principle under Pillars I and III. 68 However, as discussed in section 4.1, rather than addressing specific planned measures under Pillar II, the NAP only discusses Pillar II more broadly in terms of expectations, rather than action points A NAP should comprise action points that are specific, measurable, achievable, relevant, and time-specific. All of the specific planned measures developed in the NAP appear to be relevant to the goal of promoting business respect for human rights and protecting against and remedying business-related human rights abuse. None of the planned measures contained in the NAP have specific timelines for implementation. The only mention of a timeline in the entire NAP is in the midterm review to be conducted by GLIDU in 2018, during which time the group will assess the results achieved and identify the gaps in the actions undertaken 19

22 4.SCOPE, CONTENT, AND PRIORITIES to ensure the effective protection and advancement of human rights with regard to economic activities. 70 The majority of the planned measures in the NAP also do not specify which government agency or department is tasked with implementing and followingup on future actions (for more information, see section 6.1 of this assessment). While the majority of planned actions falls short in setting timelines or specifying implementing agencies, some planned actions are relatively strong in relation to outlining the actions the government is committing to undertaken and how these actions will be fulfilled or can be achieved. For example, under the planned measures for UNGP 3(a), the NAP commits the government not just to p o ote the ealizatio of i te e tio s o i ig a ts ights p ote t, it specifies it will do so in line with an already existing project which has already shown positive results. 71 Similarly, under UNGP 3(c,d), the NAP does not only o it the go e e t to p o ide guida e to Italia e te p ises a oad through the diplomatic and consular network for the dissemination of the UNGPs a d the DGs, ut it states that this ill e a ied out the Mi ist of Foreign Affairs and International Cooperation through the development of a st ateg hi h ill i lude a tio s su h as ad o a, at hdog a ti ities a d match making among enterp ises. 72 Additionally, under UNGPs 4-6, the go e e t pledges to [s]t e gthe the i ple e tatio of so iall espo si le public procurement rules by adopting a comprehensive framework of reference fo idde s to e oo di ated the Italia A ti-corruption Authority (A.N.AC). 73 It the goes o to la if that this o p ehe si e f a e o k fo 20

23 4.SCOPE, CONTENT, AND PRIORITIES efe e e ill o e topi s su h as a ti o uptio, o -financial disclosure, supply chain, environment, labour, equal opportunities and nondis i i atio. 74 There are, however, a number of planned measures that could benefit from more specificity. Some action points, similar to the ones discussed above, which o it the go e e t to st e gthe i g, ei fo i g, suppo ti g, and p o oti g a ious sta da ds or programs, are still too broad for the exact atu e, e te t, a d p o ess of the go e e t s o it e t to e lea. Fo e a ple, u de UNGP, d, the go e e t o its to p o ote [a] o o u de sta di g of due dilige e a o g o pa ies ; p o ote the international framework agreements developed by the International Trade U io s; a d p o ote a d e ou age leadi g ulti-stakeholder initiatives involving both big companies and SMEs for exchange and common action on BH, ho e e, it is e ague as to how it will go about doing any of these commitments. Another example of this problem is in relation to the planned measures of UNGPs 9-, hi h o it the go e e t to suppo t i itiati es in all relevant fora aiming at developing instruments to enhance fair o petitio fo the safegua d a d p o otio of hu a ights. 75 Here, it is unclear what will qualify a forum as ele a t a d ho the go e e t ill go a out suppo ti g these i itiati es. The NAP avoids introducing new legislation, only leaving the door open for further consideration, and it is framed by vague commitments - which will be difficult to monitor in the absence of a timeline and clearly allocated 21

24 4.SCOPE, CONTENT, AND PRIORITIES responsibilities. However, these commitments do include some positive elements. For example, under UNGPs 1 and 3(b), the government promises to look into enhancing enforcement of laws requiring corporate respect of human rights, and to conduct a review of the current domestic legal framework. 76 The review will assess if legislative reforms could introduce provisions on duty of care or due diligence for companies. 77 Similarly, in relation to UNGP 25-26, the NAP o its the go e e t to e aluate the i t odu tio of ele a t additional legislative measures to strengthen access to effective remedy both in i il, i i al, a d ad i ist ati e la follo i g the e ie of legal e ha is s and gaps in access to remedy. 78 Priorities for NAPS The NAP focuses on six priorities based on the gaps identified in the NBA A NAP should prioritize for action the most serious business-related human rights abuses. These priorities are: 1. P o oti g hu a ights due dilige e p o esses, ai ed at ide tif i g, preventing and mitigating the potential risks, with particular focus on SMEs; 2. Tackling caporalato (illegal hiring) (especially in the agricultural/construction sector) and other forms of exploitation, forced labor, child labor, slavery and irregular work, with particular focus on migrants and victims of trafficking; 3. Promoting fundamental labor rights in the internationalization process of enterprises with particular regard to the global productive processes; 4. Strengthening the role of Italy in a human rights-based international 22

25 4.SCOPE, CONTENT, AND PRIORITIES development cooperation [sic]; 5. Tackling discrimination and inequality and promoting equal opportunities; 6. P o oti g e i o e tal p ote tio a d sustai a ilit. 80 The NAP discusses and includes follow-up actions that specifically relate to vulnerable and excluded groups. In its Statement of Commitment, the Italian go e e t pledges to [ ]ontinue to protect, promote universal respect for, and observance of, all human rights, fundamental freedoms and nondiscrimination principles, with special attention to the rights of most vulnerable groups, such as women, children, disabled, LGBTI people, migrants and asylum seeke s, a d pe so s elo gi g to eth i a d eligious i o ities In line with the HRBA, the NAP should focus on the most vulnerable and excluded groups. The NAP discusses and addresses vulnerable and excluded groups within multiple action points. For example, under UNGP 3(a), the Italian government o its to st e gthe i g espe t of fu da e tal ights of people ith disabilities with regard to access to medical treatment and their ualit 82 U de UNGP,d, Ital o its to [e] ou age o pa ies i the dissemination of anti-dis i i atio ultu e th ough se e al easu es i ludi g p o oti g odies that ill ha e the ai of p o oti g the i lusio of workers with disabilities ithi the o kpla e; i easi g the a a e ess within the workplace on the serious issue of sexual abuse and domestic iole e; a d p o idi g i e ti es fo o po ate t ai i g o i lusio, di e sit management, gender balance and gender mainstreaming with specific focus on 23

26 4.SCOPE, CONTENT, AND PRIORITIES o e e po e e t a d LGBTI ights. 83 In addition, u de UNGP, o e of Ital s pla ed easu es is to [ ]einforce the action of the Italian Development Cooperation towards gender equality also by supporting women economic empower e t i post o fli t ou t ies 84 While the NAP explicitly references these groups, it is unclear whether they participated in consultations in the drafting process. 5.TRANSPARENCY Full Transparency with All Stakeholders 5.1. The NBA and any other significant analyses and submissions informing the NAP should be published. Numerous documents that fed into or explained the NAP process were made publicly available. The NBA was published online in Italian, and the Foundations paper in English. 85 The draft NAP was published in July 2016, and public comment was accepted until September 10, In addition, other documents were made available to explain the NAP process, including the Fact Sheet which accompanied the launch of the NBA, and the Italia go e e t s espo se to the UN Wo ki g G oup o Busi ess a d Hu a ights su e s o i ple e tatio of the Guidi g P i iples

27 6.ACCOUNTABILITY AND FOLLOW-UP Holding Duty-Bearers Accountable for Implementation 6.1. NAPs should identify who is responsible for implementation of individual action points and overall follow-up. The majority of the planned measures of the NAP do not explicitly identify the responsible government agency involved. There are a few planned measures, specifically in relation to the Guiding Principles 4-6 and 7, which do specify that the CIDU will jointly help to develop and implement these commitments. 88 The provision on follow-up to the NAP, to be discussed in detail in section 6.2, is assigned to the members of the GLIDU, which will be composed of all the ad i ist atio s ep ese ted ithi the CIDU. The GLIDU ill also o k losel with a consultative body composed of all relevant non-institutional stakeholde s. 89 The NAP lays out a framework for monitoring and reporting in Section V Mo ito i g, Update a d Disse i atio of the Pla NAPs should lay out a framework for monitoring of and reporting on implementation. To ensure the implementation of the NAP, the NAP establishes the GLIDU, hi h ill ha e the task of supe isi g the p og essi e i ple e tatio of the NAP, coordinating the monitoring activities and proposing modifications and/or revisions of the measures foreseen in the Plan on the base of either the necessity to fine tuning with future governmental policies or with new necessities and thematic priorities that will emerge in the meetings and multistakeholde i itiati es elated to the i ple e tatio of the Pla itself

28 6.ACCOUNTABILITY AND FOLLOW-UP The NAP also commits the GLIDU to conduct a mid-te e ie i to assess the results achieved and identify the gaps in the actions undertaken to ensure the effective protection and advancement of human rights with regard to e o o i a ti ities. 92 The NAP gives further context to the 2018 review by stati g that it ill e a ied out ith spe ial fo us o the p io ities set i the p ese t Pla ith the ai of add essi g futu e halle ges. 93 However, the NAP does not lay any framework for reporting on implementation of any measures, or contain a commitment to update the document or draft a revised NAP on business and human rights in the future. The NAP simply states that a mid-term review will be conducted in 2018 and that the NAP is valid through

29 ENDNOTES i DANISH INSTITUTE FOR HUMAN RIGHTS & INTERNATIONAL CORPORATE ACCOUNTABILITY ROUNDTABLE, NATIONAL ACTION PLANS ON BUSINESS AND HUMAN RIGHTS: A TOOLKIT FOR THE DEVELOPMENT, IMPLEMENTATION, AND REVIEW OF STATE COMMITMENTS ON BUSINESS AND HUMAN RIGHTS (2014) [hereinafter NAPS TOOLKIT]. ii INTERNATIONAL CORPORATE ACCOUNTABILITY ROUNDTABLE & EUROPEAN COALITION FOR CORPORATE JUSTICE, ASSESSMENTS OF EXISTING NATIONAL ACTION PLANS (NAPS) ON BUSINESS AND HUMAN RIGHTS, NOVEMBER 2015 UPDATE (2015). 3 ITALIAN MINISTRY OF FOREIGN AFFAIRS AND INTERNATIONAL COOPERATION, ITALIAN NATIONAL ACTION PLAN ON BUSINESS AND HUMAN RIGHTS: (English Version) 8 (2016), [hereinafter Italian NAP]. 4 Fact sheet: Business and Human Rights: The Italian Case, Analysis of the Normative and Institutional Framework, PUNTO DI CONTATTO NAZIONALE (Nov. 13, 2013), available for download at [hereinafter Event Fact Sheet]. 5 ITALIAN MINISTRY OF FOREIGN AFFAIRS AND INTERNATIONAL COOPERATION, THE FOUNDATIONS OF THE ITALIAN ACTION PLAN ON THE UNITED NATIONAL GUIDING PRINCIPLES ON BUSINESS AND HUMAN RIGHTS, (2014), [hereinafter The Foundations]. 6 Event Fact Sheet, supra note 4, at 2; Damiano de Felice & Andreas Graf, The Potential of National Action Plans to Implement Human Rights Norms: An Early Assessment with Respect to the UN Guiding Principles on Business and Human Rights, 7 J. OF HUM. RTS.40, 49 (2015). 7 Italian NAP, supra note 1, at 2. 8 Id. 9 Id. at Id. 11 OPEN CONSULTATION, ITALIAN NATIONAL ACTION PLAN ON BUSINESS AND HUMAN RIGHTS, CIDU 4 (Jul. 2016), centrodirittiumani.it/en/news/italy-online-public-consultation-on-the-national-action-plan-on-business-and- Human-Rights open-until-10-September/4149 [hereinafter OPEN CONSULTATION]. 12 Italy Survey 2015 Forum Response to UN Working Group surveys on implementation of the Guiding Principles, MINISTRY OF FOREIGN AFFAIRS AND INTERNATIONAL COOPERATION, INTER-MINISTERIAL COMMITTEE FOR HUMAN RIGHTS (2015), [hereinafter Italy OHCHR Survey Response]. 13 Italian NAP, supra note 1, at The Foundations, supra, note De Felice & Graf, supra note 6, at Id. 17 Id. 18 Italian NAP, supra note 1, at OPEN CONSULTATION, supra note 11, at Italy OHCHR Survey Response, supra note 9, at Italian NAP, supra note 1, at Based on the experience of members of the Human Rights International Corner. Human Rights International Corner, visited June 6, 2017). 23 Event Fact Sheet, supra note 4, at Damiano de Felice, et al., Imprese e Diritti Umani: Il Caso Italia, Analisi del Quadro Normativo e Delle Politiche di Salvaguardia, SCUOLA SUPERIORE SANT ANNA (2013), V_2013.pdf [hereinafter BHR: The Italian Case]. 25 Event Fact Sheet, supra note 4, at Id. 27

30 27 De Felice & Graf, supra note 6, at Id. at The Foundations, supra, note BHR: The Italian Case, supra note 24, at Id. at De Felice & Graf, supra note 6, at Event Fact Sheet, supra note 4, at Id. at Id. 36 These sub-criteria are laid out in Kristin Jesnes, Statens plikt til å beskytte menneskerettigheten e: En analyse av nasjonale handlingsplaner for oppfølging av FNs veiledende prinsipper for menneskerettigheter og næringsliv. (The State Duty to Protect: An Analysis of National Action Plans on Business and Human Rights). Fafo-notat 2014:15 (2014), available at (currently only available in Norwegian). 37 Italian NAP, supra note 1, at Id. at Id. at Id.at Id. at Id. at Id. at Id. at Id. 46 Id. at 16. The directive was implemented by the Italian government in January Id. at Id. at Id. at Id. at 22 (emphasis added). 51 Id. at Id. 53 See generally, id. at 15-6, Id. at Id. at Id. at Id. at Id. at Id. at Id. at Id. at 16, 20, Id. at 16,19 63 Id. at Id. at 7, Id. at 16, Id. at Id. at Id. at Id. at 9. The NAP also highlights other leading international reporting standards such as the UN Global Compact and the Global Reporting Initiative. 70 Id. at Id. at Id. at Id. at

31 74 Id. 75 Id. at Id. at 10, Id. at Id. at Id. at Italian NAP, supra note 1, at Id. at Id. at Id. at Id. at BHR: The Italian Case, supra note 24; The Foundations, supra note OPEN CONSULTATION, supra note Event Fact Sheet, supra note 1; OHCHR Survey Response, supra note Italian NAP, supra note 1, at 22, Id. at Id. 91 Id. 92 Id. 93 Id. 29